About The Book Why this book? This book is the result of a problem I faced while preparing for the Civil Services Exam with Public Administration as an optional subject. During the preparation for Public Administration paper, I faced a considerable problem because I wanted to have a single source book or coaching material for Public Administration to which I could refer back for complete, holistic, and efficient preparation. On the contrary I had to look for different sources or coaching material. It was during one of those moments that I was struck with the idea of writing a complete, holistic and to the point book on Public Administration. The key to success in Civil Services is constant revision and answer writing. I am claiming this not just from my experience alone but from the experience of hundreds and thousands of students preparing for the civil services exam. This has been the experience of many other successful students also. I have made many mistakes in the journey of civil services preparation. It has been said, “smart people learn mistakes from others, while fools make mistakes and do not learn from their mistakes”. I am happy to present this book which is truly a single source complete book for Public Administration. This book provides you with both theory and practice. It contains text matter and questions with answers. The question and answer style of preparation along with extensive textual material keep you prepared for any kind of question that can be asked in the exam. This book also presents the probable questions. The advantage of probable questions is that you are alert and on your toes in your preparation. When you appear in the actual exam, there will be no surprises because you already know what kind of questions can be asked in the exam. In Civil Services exam, the questions are not simple and straight from one topic at a time. Some questions can be tricky and complex because a single question can expect you to answer from diverse topics. Therefore, the book focuses on interlinking of topics. It would help you write balanced answers that does not neglect some part of the question at the expense of the other. This book covers each and every topic of UPSC Public Administration syllabus it also includes number of diagrams and examples from Indian administration while explaining the concept in paper 1 and examples from paper 1 to be used in paper 2. It will help you to score better marks. This is followed by questions and answers in proper format to make candidates understand how to write and use the topic content in a better manner. This book also contains probable questions to test the understanding of topic and answer writing practice. It is also advisable for aspirants to go through important reports like 2nd ARC, NITI Aayog reports, Yojana and Kurukshetra magazines to score high. In the end it is important to understand the following high scoring tips: • ‘read, revise and write’ as much as you can • use of diagram and interlinking of topics for better score • use examples from current affairs • and be creative in those 3 hours With a single source Public Administration, the best strategy for you right now is to master the subject matter with continuous answer writing practices and solving previous year question papers.

ATUL CHOUDHARY, IRS, 2018

CHAPTERWISE AND TOPICWISE QUESTIONS ASKED IN A YEAR : THESE ARE QUESTION NUMBERS ON PARTICULAR TOPIC IN RESPECTIVE YEAR PUBLIC ADMINISTRATION (PAPER-1) Chapter Name

2013

2014

2015

1(A)

1(E)

2016

2017

2018

2019

1. INTRODUCTION Meaning, scope and significance of Public Administration

1(A)

Wilson’s vision of PublicAdministration, ; Evolution of the discipline and its present status.

1(A) 1(A)

1(C)

New Public Administration,Public Choice approach;

1(B) 1(B)

Challenges of liberalization, Privatisation, Globalisation

4(A)

2(B)

3(B)

2(A)

Good Governance concept and application;

1(C)

2(A)

New Public Management

2(A)

4(A)

1(A)

2(B) 3(A)

3(B)

2(B) 2(A) 2(A)

1(C),

2(C)

2. ADMINISTRATIVE THOUGHT Scientific Management and Scientific Management movement; Classical Theory;

2(B)

1(A)

4(A)

1(B)

Weber’sbureaucratic model its critique and post-

4(B)

1(B),

Weberian Developments; Dynamic Administration (MaryParker Follett);

3(A)

Human Relations School (Elton Mayo and others);

3(B)

Functions of the Executive (C.I.Barnard);

1(C)

1(A) 2(B)

Simon’s decision-making theory;

3(A)

Participative Management (R. Likert, C. Argyris,

1(B)

4(B) 2(A)

3(B)

1(B)

4(B) 1(E),

2(A)

3(A)

D..McGregor.) 3. ADMINISTRATIVE BEHAVIOR Process and techniques of decision-making;

1(D)

Communication;

3(B)

Morale; Motivation Theoriescontent, process and contemporary;

3(A) 1(C)

3(C)

2(B)

Theories of Leadership: Traditional and Modern

1(D)

4(A)

1(D)

1(C) 1(D)

4. ORGANIZATIONS Theories systems, contingency;

2(B)

1(E)

6(B)

4(B)

4(A)

2(C) Structure and forms: Ministries and Departments, Corporations,

1(D)

4(A)

Companies; Boards and Commissions; Ad hoc, and advisory bodies; Headquartersand Field relationships;

3(C)

Regulatory Authorities;

6(C)

Public-Private Partnerships

3(B)

3(A)

3(C)

2(C)

2(C)

5. ACCOUNTABILITYAND CONTROL Concepts of accountability and control;

1(D)

4(C)

Legislative, Executive and judicial control over administration;

3(C)

Citizen and Administration;

3(C)

Role of Media, Interest groups, Voluntaryorganizations;

4(C)

5(B) 4(C)

Civil Society; Citizen’s Charters;

3(C) 4(C)

2(C)

1(E)

7(C)

4(A)

Right to Information; Social audit.

4(C)

Chapter Name 6.

2013

2014

2015

2016

2017

2019

ADMINISTRATIVE LAW Meaning, scope and significance;

1(D)

2(C)

3(B)

Dicey on Administrative law;

5(A)

Delegated legislation; Administrative Tribunals. 7.

2018

4(B)

1(C)

4(C)

1(E)

1(E)

COMPARATIVE PUBLIC ADMINISTRATION Historical and sociological factors affecting administrative systems;

5(A)

Administration andpolitics in different countries;

5(C)

5(A)

8(A)

5(B)

Current status of Comparative Public Administration; Ecology andadministration; Riggsian models and theircritique. 8.

6(B)

5(A)

7(A) 6(A)

5(D),

7(A)

DEVELOPMENT DYNAMICS Concept of development; ‘

6(A)

Changing profile of development administration;

5(B)

Anti-developmentthesis’;

7(A)

7(B)

6(A)

6(B)

Bureaucracy and development;

1(B)

4(B)

Strong state versus the market debate;

9.

5(B)

7(C)

Impact ofliberalisation on administration in developing countries;

7(A)

Women and development the self-helpgroup movement.

5(B)

6(A) 7(B)

5(E)

5(A)

5(C)

8(A)

PERSONNEL ADMINISTRATION Importance of human resource development; .

7(A)

8(A) 7(C)

Recruitment, training, career advancement, position classification,

5(A),

5(D),

6(C),

6(B)

discipline, performance appraisal, promotion, pray and service

8(B)

8(B)

6(B)

8(B)

8(C)

conditions;

7(B)

8(B)

6(B)

7(B)

employer-employee relations, grievance redressal mechanism;

5(B)

Code of conduct;

7(B)

Administrative ethics

8(C)

5(D) 6(A)

10. PUBLIC POLICY Models of policy-making and their critique;

5(D)

5(E)

5(C)

8(B) Processes of conceptualisation, planning,implementation, monitoring,

7(B)

evaluation and review and their limitations;

4(B)

State theories and publicpolicy formulation

6(A)

6(B)

8(A)

8(C)

8(C)

6(C)

11. TECHNIQUES OF ADMINISTRATIVE IMPROVEMENTS Organisation and methods, Work study and work management; e-governance andinformation technology;

8(C) 5(D)

Management aid tools like network analysis, MIS, PERT, CPM.

5(C)

7(C)

6(C)

8(C)

6(C)

8(B) 5(C)

5(C)

5(E) 5(D)

12. FINANCIAL ADMINISTRATION Monetary and fiscal policies: Public borrowings and public debt

5(E)

8(A)

7(A)

Budgets types and forms;.

5(E),

7(B)

7(C)

5(B) 8(A)

Budgetary process;

7(C)

5(B)

5(C)

5(A)

6(C)

Financial accountability; Accounts and audit

7(A) 6(A)

6(C)

7(C)

CONTENT S. No.

Topic

Page No.

1.

Introduction

11-48

2.

Administrative Thought

49-112

3.

Administrative Behaviour

113-155

4.

Administrative Systems

156-180

5.

Control and Accountability

181-212

6.

Administrative Law

213-221

7.

Comparative Public Administration

222–242

8.

Development Dynamics

243-275

9.

Personnel Administration

276-304

10.

Public Policy

305-342

11.

Techniques of Administrative Improvement

343-358

12.

Financial Administration

359-400

INTRODUCTION

CHAPTER

1

INTRODUCTION

Highlights :

 Meaning, Scope, Significance of Public Administration



 Public and Private Administration



 Wilson’s Vision of Public Administration



 Evolution of the Discipline and it’s Present Status



 New Public Administration



 Public Choice Approach



 New Public Managment



 Challenges of Liberalisation, Privatisation, Globalisation for Public Adminisration



 Good Governance: Concept and Application MEANING, SCOPE AND SIGNIFICANCE OF PUBLIC ADMINISTRATION

PUBLIC ADMINISTRATION, Though as an activity is as old as the society itself,as a discipline of study it emerged with the publication of essay of Woodrow Wilson titled “THE STUDY OF ADMINISTRATION” IN 1887. THE WORD “ADMINISTER” is derived from the latin word ‘administere’ meaning to look after people,to care for, to manage affair.. Administration may be defined as “group activity which involves cooperation and coordination for the purpose of achieving desired goals or objectives”. Broadly speaking, the term administration appears to bear at least four different meanings or different senses depending upon the context in which it is used: (1) As a Discipline: The name of a branch of learning or intellectual discipline as taught and studied in colleges and universities. (2) As a Vocation: Type of work/trade or profession/occupation, especially one that involves knowledge and training in a branch of advance learning. (3) As a Process: The sum total of activities undertaken to implement Public Policy or policies to produce some services or goods. (4) As a Synonym for 'word' Executive or Government: Such other body of persons in supreme charge of affairs, for example, Manmohan Singh Administration, Bush Administration, etc.

11

PUBLIC ADMINISTRATION

ADMINISTRATION, ORGANISATION AND MANAGEMENT Before we discuss about the meaning, definition, nature, scope and importance of public administration we will try to know what is administration, organisation and management. As these terms are often used interchangeably and synonymously, it is pertinent to know the differences and distinctions between these three terms. According to William Schulze Administration is the force, which lays down the object for which an organisation and its management are to strive and the broad policies under which they are to operate. An Organisation is a combination of the necessary human beings, materials, tools, equipment and working space, appurtenances brought together in systematic and effective co-relation to accomplish some desired object. Management is that which leads guides and directs an organisation for the accomplishment of pre-determined object. To put the above in simple terms, administration sets the goal, management strives to attain it and organisation is the machine of the management for the attainment of the ends determined by the administration. Some scholars have a different view about the administration and management. According to Peter Drucker management is associated with the business activity, which has to show economic performance, whereas administration is associated with the non business activities like activities of the Government. The other view is that administration is associated with performing routine things in known settings in accordance with certain procedures, rules, and regulations. The Management is associated with performing functions like risk taking, dynamic, creative and innovative functions. Some scholars of Public Administration are closely associated with the first view that is, administration is a determinative function. Management, on other hand is an executive function that is primarily concerned with carrying out the broad policies laid down by the administration. Organization is the machinery through which coordination is established between administration and management.

DEFINING PUBLIC ADMINISTRATION L.D. White observes that although public administration varies in form and objects, and although the administration of public and private affairs differs at many points, there is an underlying similarity, if not identity. As an integral aspect of such generic concept, public administration could be related to that type of administration, which operates within a specific ecological setting. It is a means to carry out the policy decisions made by political executive. To be seen along with it is the ‘Public’ aspect of Public administration, which attributes a special character and focus to it. ‘Public’ can be looked at formally to mean ‘government’. So, public administration is government administration, government in action, or a socio-economic and politicoadministrative confluence, the focus being especially on public bureaucracy. Encyclopedia Britannica defines public administration as ‘the application of a policy of a state through its government.’ Public Administration, therefore, refers to that part of administration, which pertains to the administrative activities of the government. Now we will try to look into the definitions of Public Administration provided by various scholars.

12

INTRODUCTION Woodrow Wilson Public administration is the detailed and systematic application of law. Every particular application of law is an act of administration. L.D. White “Public administration consists of all those operations having for their purpose the fulfilment or enforcement of public policy”. As per White, this definition covers a multitude of particular operations in many fields the delivery of a letter, the sale of public land, the negotiation of a treaty, the award of compensation to an injured workman, the quarantine of a sick child, the removal of litter from a park, manufacturing uranium 235, and licensing the use of atomic energy. It includes military as well as civil affairs, much of the work of courts, and all the special fields of government activity-police, education, health, construction of public works, conservation, social security, and many others. The conduct of public affairs in advanced civilisations requires the employment of almost every profession and skill-engineering, law, medicine, and teaching; the crafts, the technical specialties, the office skills, and many others. Percy Mc Queen Public administration is related to the operations of government whether local or central. Luther Gulick Public administration is that part of the science of administration, which has to do with the government; it concerns itself primarily with the executive branch where the work of the government is done; though there are obviously problems also in connection with the legislative and judicial branches. “Administration consists of getting the work of government done by coordinating the efforts of people so that they can work together to accomplish their set tasks”. M. Ruthanaswami “When administration has to do with the affairs of a state or minor political institutions like the municipal or country council (district board), it is called public administration. All the acts of the officials of a government, from the peon in a remote office to the head of a state in the capital, constitute public administration.” H.A. Simon, D.W. Smithburg and V.A. Thompson “By Public Administration is meant, in common usage, the activities of the executive branches of national, state and local governments, government corporations and certain other agencies of a specialised character. Specifically excluded are judicial and legislative agencies within the government and non-governmental administration.” Corson and Harris “Public administration … is the action part of government, the means by which the purposes and goals of government are realised.” Dwight Waldo “Public administration is the art and science of management as applied to the affairs of State.” M.E. Dimock “Public Administration is concerned with ‘what’ and ‘how’ of the government. The ‘what’ is the subject matter, the technical knowledge of a field, which enables the administrator to perform his tasks. The ‘how’ is the technique of management, the principles according to which co-operative programmes are carried through to success. Each is indispensable, together they form the synthesis called administration”. 13

PUBLIC ADMINISTRATION Nicholas Henry “Public Administration is a broad-ranging and amorphous combination of theory and practice; its purpose is to promote a superior understanding of government and its relationship with the society, it governs, as well as to encourage public policies more responsive to social needs and to institute managerial practices attuned to effectiveness, efficiency and the deeper human requisites of the citizenry”. The traditional definitions of Public Administration, which are given above reflect the view that the Public Administration is only involved in carrying out the policies and programmes of the government. It reflect that it has no role in policy making and also locates the administration in the executive branch but today the term public administration is used in a broader sense that it is not only involved in carrying out the programmes of the government, but it also plays an important role in policy formulation and covers the three branches of the government. In this context, we may reflected on the definition offered by F.A. Nigro and L.G. Nigro. According to them Public Administration: ³ is co-operative group effort in a public setting; ³ covers all three branches-executive, legislative, and judicial, and their inter-relationships; ³ has an important role in the formulation of public policy and is thus a part of the political process; ³ is different in significant ways from private administration; and ³ is closely associated with numerous private groups and individuals in providing services to the community”. In sum, public administration: ³ is the non-political public bureaucracy operating in a political system; ³ deals with the ends of the State, the sovereign will, the public interests and laws; ³ is the business side of government and as such concerned with policy execution, but it is also concerned with policy-making; ³ covers all three branches of government, although it tends to be concentrated in the executive branch; ³ provides regulatory and service functions to the people in order to attain good life; ³ differs significantly from private administration, especially in its emphasis on the public; and ³ is interdisciplinary in nature as it draws upon other social sciences like political science, economics and sociology.

NATURE OF PUBLIC ADMINISTRATION There are two views regarding the Nature of Public Administration, that is, Integral and Managerial. According to the integral view, ‘administration’ is the sum total of all the activities – manual, clerical, managerial, etc., which are undertaken to realise the objectives of the organisation. In this view all the acts of officials of the government from the Attendant to the Secretaries to the government and Head of the State constitute Public Administration. Henri Fayol and L.D. White are the supporters of this view. According to the managerial view of administration, the managerial activities of people who are involved in planning, organising, commanding, coordinating and controlling constitute Public Administration. This view regards administration as getting things done and not doing things. Luther Gullick, Herbert Simon, Smithburg and Thompson are the supporters of this view. The managerial view excludes Public Administration from non-managerial activities such as manual, clerical and technical activities. The two views differs from each other in many ways. According to Prof. M.P. Sharma the difference between the two views is fundamental. The integral view includes the activities of all the persons engaged in administration whereas the managerial view restricts itself only to the activities of the 14

INTRODUCTION few persons at the top. The integral view depicts all types of activities from manual to managerial, from non-technical to technical whereas the managerial view takes into account only the managerial activities in an organization. Furthermore, administration, according to the integral view would differ from one sphere to another depending upon the subject matter, but whereas that will not be the case according to the managerial point of view because the managerial view is identified with the managerial techniques common to all the fields of administration. The difference between the two views relates to the difference between management and operation or we may say between getting things done and doing things. The correct meaning of the term administration would however, depend upon the context in which it is used. Dimock, Dimock and Koening sum up in the following words: “As a study public administration examines every aspect of government’s efforts to discharge the laws and to give effect to public policy; as a process, it is all the steps taken between the time an enforcement agency assumes jurisdiction and the last break is placed (but includes also that agency’s participation, if any, in the formulation of the programme in the first place); and as a vocation, it is organizing and directing the activities of others in a public agency.”

SCOPE OF PUBLIC ADMINISTRATION By the scope of Public Administration, we mean the major concerns of Public Administration as an activity and as a discipline. Scope of Public Administration as an activity Broadly speaking, Public Administration embraces all the activities of the government. Hence as an activity the scope of public administration is no less than the scope of state activity. In the modern welfare state people expect many things – a wide variety of services and protection from the government. In this context public administration provides a number of welfare and social security services to the people. Besides, it has to manage government owned industries and regulate private industries. Public administration covers every area and activity within the ambit public policy. Thus, the scope of public administration is very wide in modern state. The scope of public administration as a discipline, that is subject of studies, comprises of the following: The POSDCoRB view Several writers have defined the scope of public administration in varying terms. Gullick sums up the scope of the subject by the letters of the word POSDCoRB which denote: Planning, Organization, Staffing, Directing, Coordinating reporting the Budgeting. Planning means the working out in broad outline the things to be done, the methods to be adopted to accomplish the purpose. Organization means the establishment of the formal structure of authority through which the work is sub-divided, arranged, defined and coordinated. Staffing means the recruitment and training of the personnel and their conditions of work. Directing means making decisions and issuing orders and instructions. Coordinating means inter-relating the work of various divisions, sections and other parts of the organization. Reporting means informing the superiors within the agency to whom the executive is responsible about what is going on. Budgeting means fiscal planning, control and accounting. According to Gullick the POSDCoRB activities are common to all organizations. They are the common problems of management which are found in different agencies regardless of the nature of the work they do. 15